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1 Make BC s Young Children and Families a Priority A Call to Action Published by First Call: BC Child and Youth Advocacy Coalition January 2015 Building on Early Childhood Development in BC: First Call s Framework for Action Published March 2003, updated 2008

3 Dedication This call to action is dedicated to the memory of Dr. Clyde Hertzman ( ), a passionate visionary, esteemed researcher and tireless advocate for young children. In Clyde s words, it doesn t have to be this way. Clyde Hertzman, a renowned advocate who delivered compelling, evidence-based arguments for why investment in the early years must become a major priority, believed in our collective responsibility for young children and their families. Our call to action builds on Clyde s legacy. It is a broad-based appeal to everyone (individual citizens, communities, businesses, policy makers and elected officials) to advocate for public policies and investments that are at the scale and scope required to help BC s young children and their families thrive. Acknowledgements The development of this document and the Framework for Action which preceded it reflects the commitment and energy of many individuals and organizations widely respected for their knowledge and expertise. First Call recognizes and acknowledges with thanks the historical funding support for the first version of Early Childhood Development in BC: First Call s Framework for Action (2003) and its revisions (2004, 2008) from the following organizations: United Way of the Lower Mainland Vancouver Foundation Health Canada City of Vancouver Human Early Learning Partnership, UBC Success By 6 We are grateful to the United Way of the Lower Mainland and the Human Early Learning Partnership for financial and in-kind support to produce this document. Writing and editing credits go to Dawn Steele, Adrienne Montani, Lynell Anderson and Mab Oloman. We are also grateful for the advice and support provided so generously by members of the Project Advisory Committee and the Early Childhood Development Roundtable.

4 Table of Contents INTRODUCTION... 1 First Call and Early Childhood Development... 1 THE FOUNDATION FOR THE CALL TO ACTION... 3 Vision... 3 Guiding Principles and Key Assumptions... 4 THE RATIONALE FOR THE CALL TO ACTION... 7 Knowledge about the importance of the early years continues to grow... 7 Consensus on the necessary policy interventions is widespread... 8 The net benefits of effective government investments in the early years are affirmed The state of Canada s and BC s policy and investment in the early years The International Perspective The Perspective at Home A review of government actions and strategies over the past decade Federal Government Provincial Government BC government strategies and investment in context Service Delivery Service Affordability Service Accessibility Support for First Call s public policy recommendations is growing THE CALL TO ACTION Our call to action is simple APPENDIX Terms of Reference APPENDIX Public Investments in Early Years Programs Other Than Child Care ( ) APPENDIX First Call s Central Hub: A Seamless Web of On- and Off-site ECD Services... 32

5 Introduction First Call and Early Childhood Development First Call: BC Child and Youth Advocacy Coalition emerged during the 1990s as a grassroots movement to advocate for the application of the UN Convention on the Rights of the Child (UNCRC). It is a non-partisan, province-wide coalition of over 90 provincial and regional organizations, engaged communities and individuals who support strong public policies and the allocation of resources for the benefit of children and youth. First Call is guided by the 4 Keys to Success for children and youth. 1. A strong commitment to early childhood development 2. Support in transitions from childhood to youth to adulthood 3. Increased economic equality 4. Safe and caring communities Goals were established for each of the keys. For the development of young children they are: To improve pregnancy outcomes To support parents of young children To build a system of high quality, affordable, accessible child care services To develop and enhance a system of early identification, support and intervention for families with children at risk for developmental delay and children with disabilities These goals shaped Early Childhood Development in BC: First Call s Framework for Action, first published in The purpose of the Framework for Action was to: Build commitment and agreement for action on early childhood development (ECD) to guide the ongoing advocacy work of First Call. Propose a province-wide action framework for early childhood development, within which communities can determine, develop and deliver the ECD supports and services that are needed by their young children and families. Clarify what fits specifically within the ECD action framework and determine the broader enabling factors that support all children, youth and families. Identify the range of ECD specific supports, services and strategies needed to foster the optimal healthy development of young children and families in British Columbia (BC). Provide First Call a basis for ongoing reflection, monitoring and updating of BC s progress in early childhood development. 1

6 In , with support from the United Way of the Lower Mainland, First Call led an extensive provincial engagement and review process. The intent was to bring the Framework for Action up to date; to identify changes in public policy, investment, services and community development since the 2008 edition and to note new research as well as the diverse perspectives and collective wisdom of First Call s early years partners. As work progressed on the initial drafts of the proposed 2014 Framework for Action it became clear that since 2008 there has been more research about the importance of the early years; more evidence of Canada s and BC s policy and investment shortcomings; and growing broad-based public support for the implementation of new government policies and increasing investments that support young children and their families. Yet there has been little progress on the latter since the first edition of the Framework for Action. Therefore, with a sense of urgency, rather than updating the framework, (the bones of which, including the Basket of Supports and the consensus on key principles, still stand the test of time), First Call decided to publish this new document, Make BC s Young Children and Families a Priority: A Call to Action. This Call to Action builds on what exists at First Call and is grounded in what First Call and partners believe, what we know, what we do and what we have agreed on, concepts outlined in the terms of reference 1 developed to provide clarity to First Call partners and other stakeholders about the mandate, scope and process of the work involved in moving from the Framework to this Call to Action We believe that all children and youth in BC should have first call on society s resources. While the protection of children s rights is the primary responsibility of governments at all levels, the UNCRC also acknowledges the important roles that community organizations and groups such as First Call play in monitoring and raising public awareness about our progress towards realizing children s rights. We know from research, evidence and direct experience that substantial public policy change in BC and Canada is required to advance healthy child development and address the scale and scope of the socioeconomic realities facing the majority of families with young children today, particularly those who face additional barriers. We do public education, community mobilization and policy advocacy, driven by the evidence. Organizations that are concerned about child and youth rights and endorse our 4 Keys to Success are welcome to become partners in the First Call Coalition, and provide direct input on our priorities, positions, campaigns and endorsements. We agree on and/or endorse a range of public policy initiatives that inform all of our work, including this ECD Framework for Action project. Relevant to our call to action and in addition to our foundational 4 Keys to Success, First Call supports the call for a provincial poverty reduction plan, the Living Wage for Families Campaign, Jordan s Principle, the $10/day Child Care Plan, the campaign to Repeal Section 43 (no physical punishment), the Seed to Cedar Campaign, the BC Child Rights Public Awareness Campaign, the call for a provincial ban on the sale and use of cosmetic pesticides and, of course, the original ECD Framework for Action. 1 1 Full text of the terms of reference can be found in Appendix 1. They form the starting assumptions for the Framework for Action project and as many of the points in them are explored in a range of widely available documents, they may not be detailed in this report. 2

7 1 The Foundation for the Call to Action Vision The rights and well-being of all BC s young children are valued and respected in thriving families, nurturing communities and by well-resourced and comprehensive public policy. 3

8 Guiding Principles and Key Assumptions Both the Framework for Action and this Call to Action build on a strong consensus about guiding principles and key assumptions; a consensus achieved through the engagement and review process. As a result, beginning with the individual child and family, and moving to the influence of communities and government policies, our call to action: Advances children s rights, including their right to be valued and respected as individuals and to be visible in and connected to their communities. Children have the right to live, play and learn in safe, inclusive, nurturing environments that help them realize their full potential in all realms of development. Children are also entitled to the progressive exercise of their rights, including the right to have their views heard, in accordance with their evolving capacities. Therefore, in all decisions that directly and indirectly affect their safety, well-being and healthy development, children s needs and interests come first. Emphasizes the role of families in realizing children s rights, affirming that parents and families in all their diversities are the first and primary teachers and caregivers of their children. Families are central to promoting children s healthy development, and must be supported by public policies that provide them with enough time, income and services to balance and fulfill their caring and earning responsibilities. Effective early years services welcome and support the engagement of families as key partners, including mothers, fathers, elders, extended and non-traditional families and caregivers. Supports communities in all their diversities and in their ongoing efforts to build safe and nurturing environments for young children. Knowing that community efforts are necessary and valued, but not sufficient on their own, the call to action also encourages community efforts to raise public awareness about and advocacy for the early years. It also promotes cross-sectoral community collaboration, coordination and (where appropriate) service integration in order to improve programs and services today, and to lay the foundation for effective implementation of new government policies and investments in the future. Affirms society s collective responsibility to support all young children s healthy development, without discrimination. This requires a foundation of universal supports and services, and additional strategies to address specific barriers facing certain families and population groups (such as those living in poverty and/or with mental health concerns) and systemic barriers that limit the overall availability, affordability and integration of early years programs. It also means taking action to support the full inclusion of young children at risk of developmental delay and children with additional support needs. 4

9 Highlights the importance of early years services and supports that are culturally safe, respectful and relevant. This includes respecting the experiences, cultures and languages of children and families who are new to Canada and/or are members of diverse ethno-cultural communities. Recognizes our unique relationship with, and responsibilities to, Aboriginal peoples 2, respecting the histories, status, cultures, customs, languages and rights of their children, families and communities. This includes advancing the right of Aboriginal peoples to have jurisdiction over their early years programs and services to ensure they best reflect community needs, hopes and dreams 3. Specifically, this call to action affirms that early years programs and services are best developed through community and Nation-driven processes that foster Aboriginal child and family wellness; build capacity within Aboriginal families, communities, and organizations, [and]; ensure that Aboriginal worldviews, cultures, and languages are integral in all programs and services. 4 Acknowledges that governments need to take decisive action in order to meet our collective responsibilities to all families with young children, including Aboriginal families and communities. Population-wide, families with young children today are squeezed for time, incomes and/or services, and communities cannot reduce this pressure on their own. Only senior levels of government can introduce and sustain the policies and investments at the scale and scope required to significantly reverse the current trends and help young children and their families thrive. Moreover, it is senior levels of government federal, provincial and territorial who have assumed responsibility for advancing the rights of young children and their families, through the various UN conventions now in place. 5 Prioritizes the supports and services that are unique to the early years, while recognizing that there are broader enabling conditions that everyone needs to thrive. Specifically, and as outlined in detail in General Comment 7 of the UNCRC, this call to action affirms that young children are holders of all rights enshrined in the Convention and that early childhood is a critical period for the realization of these rights. Early childhood is also the period of most extensive (and intensive) parental responsibilities related to all aspects of children s wellbeing Accordingly, realizing children s rights is in large measure dependent on the wellbeing and resources available to those with responsibility for their care. In addition to supports and services tailored to the early years, however, young children and families like everyone thrive in societies that are characterized by greater social and economic equality, 2 Aboriginal peoples refers to First Nations, Metis, Inuit, status and non-status, and individuals who self-identify as Aboriginal. 3 As described, for example, in the belief statements outlined by the BC Aboriginal Child Care Society. Downloaded July 9, 2014 from 4 As described, for example, in BC First Nations Early Childhood Development Framework, prepared for the BC First Nations Early Childhood Development Council, November 2009, p. 10. Downloaded July 9, 2014 from 5 These include, but are not limited to, the UN Convention on the Rights of the Child (UNCRC) along with related General Comments (GC) that provide further information on specific aspects of children s rights including early childhood (GC7), children with disabilities (GC9), indigenous children (GC11) and the impact of the business sector (GC16). All of the General Comments were available for download July 10, 2014 at 5

10 environmental sustainability, good jobs that pay living wages, access to affordable and safe housing, nutritious food, accessible transportation, and universal health care and education, including post-secondary. Calls on governments to build from existing services, wherever possible, when introducing new policies and investments. When additional public funds are available, community-based groups should have opportunities to access those funds and to be accountable for measurably increasing the quality and/or accessibility of their programs and services. This approach acknowledges and values the skills, knowledge, infrastructure and relationships with families that already exist in communities across the province. Affirms that we can afford to make substantial and meaningful public investments in young children and their families. The call to action draws on the overwhelming evidence showing that BC could choose to prioritize these public investments, and that doing so would provide substantial social and economic benefits throughout the province. In other words, the cost of underinvesting in families with young children today is actually higher than the public investment required to help them thrive. Provides First Call, other organizations, governments and communities with a tool for ongoing reflection, monitoring and advocacy to promote improved outcomes for BC s young children and their families. As this call to action complements existing and (to the best of our knowledge) emerging Aboriginal, provincial, regional, sectoral and community early years plans and strategies, it is also a tool for collaboration across BC. With these guiding principles and key assumptions in hand, early years communities and individuals will find a place for everyone by embracing diversity and inclusion, ensuring that our actions and advocacy address everyone s needs, and by keeping the overarching Framework for Action and this Call to Action in our hearts, our minds, our words and our work. The rationale for doing so is profound. 6

11 2 The Rationale for the Call to Action Since both the original (2003) and updated (2008) Framework were written, the research, evidence and support for policy change and public investment has grown exponentially. This is why it is important to move from a Framework for Action to a Call to Action. Specifically, BC now has: More research affirming the importance of the early years and widespread consensus on the necessary policy interventions and net benefits of effective government investments More evidence of Canada s and BC s policy and investment shortcomings to date More support for action from a range of individuals and groups, including several in the business community Knowledge about the importance of the early years continues to grow Learnings in the areas of child development, epidemiology, neuroscience, genetics, epigenetics and prevention have all contributed to our understanding of the early years as the most intensive and sensitive period for brain development. The complex mechanisms at work in this exceptionally dynamic period, conception to about six years of age, include the interaction between genes (nature) and environment (nurture). Research has provided conclusive evidence that many factors in a child s social and physical environment exert powerful effects, both positive and negative, with lifelong consequences for physical and mental health, behaviour and learning outcomes. For example, new studies suggest that chronic exposure to toxic stress and adverse environments (e.g., poverty, violence, pollution, neglect and other stressors) can alter the structure and function of the brain and biological stress responses throughout the life course. BC s own researchers, including the late Dr. Clyde Hertzman and colleagues at the Human Early Learning Partnership (HELP), have been leaders in building greater public awareness about these learnings and their implications for public policy. 6 The science of child development now helps us to see healthy development as a causal chain policies and programs across the public and private sectors affect the capacities of caregivers and communities to strengthen three foundations of healthy development: stable, responsive relationships; safe, supportive environments; and appropriate nutrition. These foundations, in turn, trigger physiological adaptations or disruptions that influence lifelong outcomes in health, learning and behaviour. Understanding how each link in this chain affects the others can provide a science-based framework for decisions about policies, systems, and practices that support the healthy development of all young children and their families. Harvard University, Centre for the Developing Child 6 See, for example, Human Early Learning Partnership s Research Brief (2013). What makes a difference for early child development? Total Environment Assessment Model for Early Child Development (TEAM-ECD). Downloaded July 10, 2014 from 7

12 Consensus on the necessary policy interventions is widespread There is also widespread and growing agreement about the government policies that most effectively support this crucial developmental period. Notably, a 2008 UNICEF report applied 10 family policy benchmarks, a set of minimum standards for protecting the rights of children in their most vulnerable and formative years to assess relevant policy in participating countries. 7 The benchmarks, grounded in the UNCRC General Comment 7, were arrived at through consultation with government officials and academics from economically advanced countries in Asia, Europe and North America and with input from UNICEF and the World Bank. They evaluate parental leave policies, poverty rates and income support strategies, the quantity and quality of early childhood education and care (ECEC) services, the availability of essential child health services, national plans for early childhood services and levels of public investment. In other words, the benchmarks assess government plans, policies and investments that provide families with the time, incomes and services they need to balance and fulfill their caring and earning responsibilities, thereby helping their children thrive. Time, Income, Services is the policy framework proposed by HELP in , and it is broadly consistent with the basket of services proposed in First Call s Framework for Action and with a range of other recommended policy frameworks. 9 HELP s framework was subsequently clarified and published as A New Deal for Families. 10 Its key elements are excerpted, summarized and adapted below as they relate to children by age: 7 See both UNICEF (2008). In Innocenti Report Card 8. Place published: UNICEF Innocenti Research Centre, and Bennett, John (2008). Benchmarks for Early Childhood Services in OECD Countries. Innocenti Working Paper Kershaw P., Anderson L., Hertzman C., Warburton B. (2009). 15 by 15: A Comprehensive Policy Framework for Early Human Capital Investment in BC. Vancouver, BC: University of British Columbia, Human Early Learning Partnership. 9 See, for example, First Call s 2013 Child Poverty Report Card (p. 28, recommendations 11 and 14) and Pascal, C. With Our Best Future in Mind: Implementing Early Learning in Ontario, p. 5. Downloaded July 10, 2014 from https://dr6j45jk9xcmk.cloudfront.net/documents/89/earlylearningreporten.pdf 10 Human Early Learning Partnership Fact Sheet (2011). A New Deal for Families. 8

13 From Birth to 18 months: From Birth to 18 months: From 18 months to six years: Time and Income Provide universal access to a benefit system that ensures all parents, Provide universal access to a benefit Whereas the period from birth to 18 whether in single or dual-earner households (including the self-employed) and regardless of system that ensures all parents, whether months prioritizes (and financially attachment to the labour market, have the time and resources (incomes) to be home with in single or dual-earner households supports) family time with young their newborns. This would include: (including the self-employed) and children, the policy recommendations o regardless Extending of parental attachment leave to from the labour the current 12 after months 18 months to 18 months, prioritize and family generally income. market, reserving have the the extra time time and for resources dads (with exceptions Reduce for early lone care parents and learning and same-sex fees to no (incomes) to be home with their more than $10/day (full-time) and $7/day couples). newborns. This would include: (part-time), making it free for families o Increasing benefits to 80 percent of parents earning income less (maximum than $40,000 $60,000 annually. per year), At Extending parental leave from the making time at home affordable for families. these This fee increase levels, would all families double who the currently current 12 months to 18 months, and existing maximum benefit. The new minimum benefit pay would at or be near $440 market weekly, rates substantially for child care generally reserving the extra time for reducing child and family poverty for this age will group. have more income, and those with dads (with exceptions for lone lower incomes will be better supported to parents and same-sex couples). Services Build on existing services 11 to provide universal remain and out regular of poverty. access In to addition, high quality, the Increasing benefits to 80 percent of voluntary support programs and healthy child combination check-ins 12, of consistent reduced parent with the fees parents income (maximum $60,000 guiding principles outlined above. The purpose of healthy child (along check-ins with widely is to promote available access spaces, to as per year), making time at home and uptake of health-care services and programs (e.g., immunization, outlined below) screening), will provide and families to answer affordable for families. This increase questions about and help families understand, support traditionally, and track mothers their children s with more would double the existing maximum development. Where follow-up supports and services choices are needed, and flexibility the goal in is balancing also to ensure caring benefit. The new minimum benefit they are available on a timely basis with no barriers to and access. earning. On balance, after an would be $440 weekly, substantially extended and generous leave, more reducing child and family poverty for From 18 months to six years: mothers can return to the paid labour this age group. force, or increase their paid hours, which Time and Income Whereas the period from birth to again 18 months increases prioritizes family (and incomes. financially supports) family time with young children, the policy recommendations after 18 months prioritize Build family on existing income. services Reduce 11 early to provide care and learning Build fees on existing to no more regulated than $10/day child care (fulltime) and universal $7/day and (part-time), regular access making to it high free for families programs earning to less provide than universal $40,000 annually. access to At these quality, fee levels, voluntary all families parent who support currently pay at or high near quality, market affordable rates for child early care care will and have more programs income, and and healthy those child with lower check-ins incomes 12, will learning be better programs supported available to remain on out a parttime of poverty. consistent In addition, with the the combination guiding principles of reduced parent fees or full-time (along with and widely voluntary available basis spaces, outlined as outlined above. below) The will purpose provide of healthy families traditionally, that are integrated mothers with with kindergarten more choices and flexibility child check-ins in balancing is to caring promote and access earning. to On balance, programs after at an age extended five and consistent and generous with leave, more and uptake mothers of can health-care return to services the paid and labour force, the guiding or increase principles their paid outlined hours, above. which again increases programs family (e.g., immunization, incomes. screening), Programs would support healthy child and to answer questions about and help development by supplementing, but Services Build on existing regulated child care programs to provide universal access, to high families understand, support and track never replacing, the care that families quality, affordable early care and learning programs available on a part-time or full-time their children s development. Where provide directly. Families could choose to and voluntary basis that are integrated with kindergarten programs at age five and follow-up supports and services are use the early care and learning programs, consistent with the guiding principles outlined above. Programs would support healthy child needed, the goal is also to ensure they are regardless of parental employment, development by supplementing, but never replacing, the care that families provide directly. available on a timely basis with no and/or they could choose to continue Families could choose to use the early care and learning programs, regardless of parental barriers to access. accessing other parent support employment, and/or they could choose to continue accessing other parent support programs. programs. Time and Income Services 11 First Call also supports families right to access quality, affordable child care for children under 18 months. 12 Originally described as developmental 11 First Call also supports monitoring families in right 15 by to 15, access p. 20 (footnote quality, affordable 8 above). child care for children under 18 months. 12 Originally described as developmental monitoring in 15 by 15, p. 20 (footnote 9 above). 9

14 Along with other benefits, HELP projects that acting on these family policy recommendations would substantially reduce child and family poverty. International research documents the toxic effects of poverty on child development, and the resulting inequities in health and other areas of developmental vulnerability among BC children. Lower socioeconomic status is strongly related to poorer health and to a higher risk for suboptimal development among young children. These inequities are unfair and preventable, and can be addressed through prioritizing and increasing public investment in the early years. For families with young children, a firm foundation of time, income and service supports including mental health services and supports for adults will help families stay together and thrive together. Evidence also suggests that reducing the time and income stress on families helps to tackle the systemic pressures that are exacerbating mental health issues for many families today, issues that can lead to family breakdown and children being taken into government care 13. Research has also established that the essential elements for consistently achieving positive outcomes for children and families are high service quality and proportionately universal access. High service quality Staff are key to success for early years services from parent support to early care and learning programs 14. Specifically, welltrained, adequately compensated and socially valued early years staff are more likely to build respectful and trusting relationships with families and create nurturing and stimulating environments for young children. Therefore, HELP s proposed government policy recommendations incorporate increased public funding for staff training (specific to early child development) and staff compensation. Unfair and preventable inequities in children s health and development created by poverty can be addressed through increasing public investment in the early years. 13 Kershaw P., Anderson L., Hertzman C., Warburton B. (2009). 15 by 15, p. 48, Early years staff are important community assets. They bring a diversity of perspectives and experiences, drawing upon the expertise and experience of practitioners from a wide range of fields including but not limited to public health, family support, literacy, early childhood education, special education, speech and language, mental health, social work, community development, immigrant settlement, working with indigenous populations, and women s issues. Investing in practitioners builds community capacity, facilitates community planning and encourages an integrated family-centred service delivery approach. 10

15 Proportionately universal access Application of the principle of proportionate universality helps ensure that the benefits of universal supports and services reach all children and families, including those who may experience barriers to access. This is accomplished by layering targeted supports and services on top of a universal approach. Within such a system, services may need to be provided at various levels of intensity and scale, tailored to the unique needs of certain populations and communities. 15 An effective approach to proportionate universality will also include a transparent, reliable and publicly accountable method of determining the need for targeted supports and services. HELP researchers have identified specific service barriers that occur most commonly for families. These include a shortage of available and/or affordable services; varying levels of parental knowledge and understanding of the importance of early child development; work-life and time conflicts that make it hard to access services/programs at the times they are offered; transportation constraints; language barriers and a lack of environments that are welcoming for all. Service barriers are [both] about concrete issues such as a lack of affordability [and] about people needing services that are welcoming and safe. 16 Well-resourced, community-based information and referral services are also essential for reducing barriers to access, and therefore an important component of the recommended policy framework. These services must be visible, interactive and child-and-family focused, quickly and efficiently connecting children, families and early years practitioners to supports, services and resources. Needless to say, the effectiveness of these services is maximized when there are quality, affordable, accessible programs to refer people to. The net benefits of effective government investments in the early years are affirmed Given the importance of the early years to human development, it is not surprising that many economic studies show that effective public investments in key family policies provide returns that far outweigh the costs. Equally, it follows that failure to invest in families with young children imposes substantial long-term costs to our education, health care, social welfare and justice systems, as well as undermining economic productivity and social stability. 17 Early years-specific studies Investment in early education can help to address core economic and social challenges facing Canada. It can help reduce poverty, address skills shortages, improve productivity and innovation, and a host of other national priorities. TD Chief Economist Craig Alexander, TD Economics Special Report, Early Childhood Education Has Widespread and Long Lasting Benefits, November 27, Human Early Learning Partnership, Research Brief (2012). Addressing Barriers to Access, p. 1. Background information from HELP Policy Brief (2011) Proportionate Universality. 16 Human Early Learning Partnership, Research Brief (2012). Addressing Barriers to Access, p Kershaw P., Anderson L., Hertzman C., Warburton B. (2009). 15 by 15: A Comprehensive Policy Framework for Early Human Capital Investment in BC. Vancouver, BC: University of British Columbia, Human Early Learning Partnership. 11

16 complement and build on the growing body of evidence showing that inequality, overall, has substantial economic as well as social costs. 18 While many of the early years studies show that the net benefits are achieved over time (i.e., as children age and enter the workforce), some recent studies and analyses point to more immediate returns. 19 This is a helpful development because an emphasis on long-term impacts risks undermining children s right to be valued for who they are today, and families right to public support as they nurture the next generation through the early years. Economic analyses generally focus on programs for which the outcomes are measurable and reasonably attributable. They are not able to capture the impact of the many qualitative interactions that occur in early years programs the ideas, options and links provided by a resource and referral staff that open new doors for a parent, or the friendships that an isolated mom develops in a family resource program. While we intuitively understand that these parents receive the information, strength and empowerment they need to better help their children and families thrive, it is difficult to measure the specific outcomes of these interactions or to fully evaluate their impact. First Call believes that, while the economic rationale for increasing public investment in the early years is compelling, it does not replace the primary rationale founded on children s rights. 18 See, for example, Wilkinson R., Pickett K. (2009). The spirit level: Why more equal societies almost always do better. London, UK: Allen Lane-Penguin Books; Marmot Review Team (2010). Fair society, healthy lives. The Marmot review. London, UK: Strategic Review of Health Inequalities in England post Available from: and the work carried out by the UK s Equality Trust, available from 19 See, for example, Fortin, P., Godbout, L., St. Cerny, S. (2012). Impact of Quebec s Universal Low Fee Childcare Program on Female Labour Force Participation, Domestic Income, and Government Budgets. Working Paper 2012/02. 12

17 The state of Canada s and BC s policy and investment in the early years The International Perspective Canada ranked last out of the 25 developed countries assessed by UNICEF in the 2008 report card referenced earlier on page 8. As illustrated below, Canada achieved only one out of the 10 family policy benchmarks. Sweden and other Nordic countries achieved between eight and 10 marks, and countries considered Canada s peer nations (Australia, New Zealand, US, UK, Ireland) achieved between one and six marks 20. TABLE 1 Family Policy Benchmarks Four Examples Sweden New Zealand United States Canada Time and Income Parental Leave Benchmark to be achieved Maximum points = 10 1 year at 50% salary, with reserved time for fathers Income Supports Child poverty rate <10% Services ECEC Quality Majority of staff trained: Appropriate child:staff ratios ECEC Access 80% 4 year olds; 25% under 3 years. Regulated, subsidized Other Early Years Universal outreach, essential health Public Planning & Investment Planning Public Investment National plan with priority for disadvantaged % of GDP invested in ECEC Summarized and adapted from Figure 1, p. 2 UNICEF Innocenti Report Card In UNICEF s Report Card 8, p. 2, Canada and Ireland were tied for last place, achieving one benchmark each. However, in the related Benchmark report (see Annex section, starting on p. 72) countries were originally assessed on 15 benchmarks, and in this earlier assessment Ireland achieved three benchmarks whereas Canada achieved only one. See both UNICEF The child care transition: A league table of early childhood education and care in economically advanced countries. In Innocenti Report Card 8. Place Published: UNICEF Innocenti Research Centre, and Bennett, John Benchmarks for Early Childhood Services in OECD Countries. Innocenti Working Paper

18 This finding by UNICEF adds to the growing evidence, at home and abroad, of BC s and Canada s weak policies, investments and outcomes for families with young children. Subsequently, in 2012, after considering progress reports by Canadian governments and nongovernmental organizations on the status of children s rights in Canada, the UN Committee on the Rights of the Child noted in its concluding observations that, while some positive actions had been undertaken by Canada, many concerns remained. Examples of the concerns expressed by the committee can be seen in the following excerpts. 21 (32) [Regarding] the continued prevalence of discrimination on the basis of ethnicity, gender, socio-economic background, national origin and other grounds. In particular, the Committee is concerned at the lack of action following the Auditor General s finding that less financial resources are provided for child welfare services to Aboriginal children than to non-aboriginal children. (67) Income inequality is widespread and growing and that no national strategy has been developed to comprehensively address child poverty despite a commitment by Parliament to end child poverty by The Committee is especially concerned about the inequitable distribution of tax benefits and social transfers for children. (71) Despite the State party s significant resources, there has been a lack of funding directed towards the improvement of early childhood development and affordable and accessible early childhood care and services. The Committee is also concerned by the high cost of child care, the lack of available places for children, and the absence of uniform training requirements for all child care staff and of standards of quality care. The Committee notes that early childhood care and education continues to be inadequate for children under four years of age. Furthermore, the Committee is concerned that the majority of early childhood care and education services in the State party are provided by private, profit-driven institutions, resulting in such services being unaffordable for most families. The resulting recommendations of the UN Committee on the Rights of the Child are consistent with the vision and related policy recommendations made by UNICEF as well as others including the Organization for Economic Co-operation and Development (OECD) 22, HELP and First Call. There is coherence in the chorus of voices that advocate for the well-being of young children. 21 Committee on the Rights of the Child, October 5, Consideration of reports submitted by States parties under article 44 of the Convention, Concluding observations: Canada. CRC/C/CAN/CO/ For example, in October 2006 the Childcare Resource and Research Unit produced the briefing note, Early learning and child care: How does Canada measure up? The publication summarizes and discusses multiple international comparisons of child care and related family policies using data from Starting Strong II: Early Childhood Education and Care (Organisation for Economic Co-operation and Development, 2006). Starting Strong II affirmed Canada s relatively high rates of child and family poverty and low rates of public investment in and access to child care, in comparison to other developed countries. The international comparisons also showed Canada s child care fees are relatively high, and access to maternity/parental leave is weaker than in many of our peer nations. 14

19 The Perspective at Home While the international findings highlight Canada s relatively weak family policy overall, Canadian research shows that, among provinces, BC is particularly weak on several key family policy measures. For example, throughout most of the last decade BC s child poverty rates have been consistently above the national average for all children, and for children under age six. Furthermore, there are significantly higher poverty rates for children of recent immigrants, children of Aboriginal identity, children of female lone-parent families, children in racialized families and children with a disability. 23 Meanwhile, access to quality, affordable child care remains particularly problematic in BC. The most recent (2012) Canadian snapshot of child care 24 indicates that: Only 18% of children under 12 in BC had access to a regulated child care space (Canadian average, 20.5%). This means that many of our youngest children are in unregulated care arrangements, with no standards for or monitoring of safety or quality. The public investment per regulated child care space in BC was only $398/year, whereas the Canadian average excluding Quebec was $436/year and $838/year including Quebec. In fact, the total BC public investment in regulated child care decreased by $16 million between 2009/10 and 2011/12 (from $243 million, after adjusting for inflation, to $227 million). The relatively small public investment in child care in BC helps explain why parent fees continue to increase at rates that outpace inflation 25. BC fees are higher than the Canadian average across all age groups. For infants and toddlers, they are now the second highest in the country (after Ontario), and the second highest cost for families (after housing) in various living wage calculations First Call: BC Child and Youth Advocacy Coalition (2013). British Columbia 2013 Child and Family Poverty Report Card, p Ferns, C., Friendly, M. (2014). The state of early childhood education and care in Canada The average annual inflation rate in BC from 2006 through 2012 was 1.4%. Calculated from Statistics Canada. Table Consumer Price Index (CPI), CANSIM (database). (Accessed: ). Table 2 below shows that child care parent fees rose by an additional 3.7% to 4.6%, on average, over the same time period. 26 See 15

20 Several reports point to the difficulty of recruiting and retaining qualified early years staff; the low level of public funding (and as one consequence, high parent fees for child care) leaves little room for appropriate staff compensation. A 2012 national survey conducted for the Child Care Human Resources Sector Council found that wages for BC child care staff remain below the Canada-wide average; fewer than 50% of staff had access to most benefits ; and 63% of employers had challenges filling a vacant position 27. Lack of or reduced public funding also limits access to other early years programs and services 28, particularly in rural and remote areas and for children with additional support needs. The use of waitlist strategies and/or restrictive eligibility criteria to ration access to needed interventions is inconsistent with the evidence showing that early interventions are most effective. The BC Association of Child Development and Intervention (BCACDI) notes that, as a result of the net decrease in funding, agencies must make cuts that directly impact the number of children that will receive service and the amount of service they will receive. 29 These restrictions contradict three of the four UNCRC guiding principles, which are key to realizing any and all rights: 1) non-discrimination 2) adherence to the best interests of the child 3) the right to life, survival and development. 30 A review of government actions and strategies over the past decade Federal Government First Call s Framework for Action was first published when senior levels of government (federal, provincial and territorial (FPT)) were acknowledging the importance of the early years and recognizing the need to increase public investment. FPT transfer agreements were in place or under development, with provinces and territories agreeing to invest the federal funding in a range of early years programs and services and report annually to the public on their activities and expenditures. However, in 2006 a new federal government terminated the most substantial early years agreement, which provided for direct investment in child care, and replaced it with a taxable payment to parents of $100 per month per child under age six (UCCB) 31, and the offer of a tax credit for employers who created new child care spaces for their employees. To date, there has been no substantive use of the 27 Child Care Human Resources Sector Council (2013). You Bet We Still Care! A Survey of Centre-Based Early Childhood Education and Care in Canada: Highlights Report. Ottawa, Ontario, Canada, pp , See for example, for a discussion of the impact of recent wage increases (for workers in the community services sector), which were supposed to be offset by savings found elsewhere in the contract, without government putting in any additional money and without services being affected. But as wage increases come into effect, some employers say it is difficult or impossible to cover increased wage costs without cutting staff or services. 29 PowerPoint presentation. ECD Roundtable. January 17, UNICEF, The Convention on the Rights of the Child, Guiding principles: general requirements for all rights. Downloaded July 15, 2014 from 31 For more information about the Universal Child Care Benefit (UCCB), see 16

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